January 30, 2009
Police Suicide
Task Force
New Jersey
Report
Submitted to Governor Jon S. Corzine
January 30, 2009
January 30, 2009
Table of Contents
Executive Summary. . . .4
I. Scope of the Problem . . . .5
II. Risk Factors . . . .7
III. Existing Resources and Barriers to Seeking Care . . . 9
IV. Recommendations. . . .14
V. Conclusion. . . .20
Appendix A: Police Suicide Task Force Members. . . .21
Appendix B: Presentations to the Task Force . . . .22
Appendix C: Resource Contact Information. . . .23
Appendix D: Survey of Law Enforcement Supervisors . . . 24
Appendix E: Model Policies . . . .27
January 30, 2009
Executive Summary
Nationally, suicide is the eleventh leading cause of death. While New Jersey has one of the low- est suicide rates in the nation, suicide is also a leading cause of injury death in the state, exceeded only by motor vehicle crashes and drug overdoses. In 2007, New Jersey had more than 600 suicides, and suicides exceeded homicides by a ratio of approximately three to two. For each completed suicide, approximately eight non-fatal attempts result in hospitalization.
Yet the impact of suicide cannot be measured by the number of deaths alone, because suicide has devastating consequences for loved ones, co-workers and society. The law enforcement community in New Jersey and elsewhere has long been faced with the troubling issue of law enforcement officer suicide, which routinely takes more lives than deaths occurring in the line of duty. The stress of law enforcement work as well as access to firearms puts officers at above average risk for suicide. The impact of suicide in the law enforcement community has led many to call for a more concerted effort to improve prevention.
On October 5, 2008, Governor Jon S. Corzine announced the formation of the Governor’s Task Force on Police Suicide. A fourteen member panel was established representing various branch- es of law enforcement, mental health professionals, service providers, and survivors’ organiza- tions. A list of the Task Force members is included in Appendix A. Chaired by the Attorney General and the Commissioner of Human Services, the Task Force was charged with examining the problem of law enforcement1 suicide in New Jersey, and developing recommendations for suicide prevention.
The Task Force members shared their expertise and reviewed a great deal of material on law enforcement officer suicide. Additionally, a number of guest speakers made presentations. A complete list of presentations is included in Appendix B. The Task Force also surveyed law enforcement supervisors on their utilization of mental health services for their officers.
The Task Force’s recommendations focus on:
• Providing more suicide awareness training to law enforcement officers and supervisors;
• Improving access to and increasing the effectiveness of existing resources;
• Recommending the adoption of best practices; and
• Combating the reluctance of officers to seek help.
1For the purpose of this Task Force’s work, the law enforcement population was defined as: current or retired/dis- abled state, county, and municipal police officers, as well as sheriffs, marshals, campus police, and corrections officers.
Civilian employees of these agencies, security guards, and other investigators who are not officers are not considered to be law enforcement officers for the purposes of this Task Force.
I. Scope of the Problem
Suicide is a very real problem for law enforcement officers and their families. Most studies have shown that the number of officer lives lost to suicide exceeds those killed in the line of duty. A number of potential risk factors are unique to law enforcement. Law enforcement officers are regularly exposed to traumatic and stressful events. Additionally, they work long and irregular hours, which can lead to isolation from family members. Negative perceptions of law enforce- ment officers and discontent with the criminal justice system also play a role in engendering cynicism and a sense of despair among some officers. A culture that emphasizes strength and control can dissuade officers from acknowledging their need for help. Excessive use of alcohol may also be a factor, as it is for the population in general.
Access to firearms is a critical factor in law enforcement officer suicides, since most officers are required to maintain their firearms on and off duty. One study of New York City police officers showed that 94% of police suicides involved the use of a service weapon. Suicide prevention research has overwhelmingly demonstrated that access to lethal means has an independent effect on increasing suicide risk.
New Jersey
New Jersey is one of seventeen states funded by the Centers for Disease Control to participate in the National Violent Death Reporting System (NVDRS), a unique source of information on vio- lent fatalities including suicide. This richly detailed surveillance system, maintained by the New Jersey Department of Health and Senior Services, collects information on the circumstances surrounding violent deaths in New Jersey, using information from police and medical examiner reports, death certificates, and newspapers. NVDRS also collects information on the occupa- tions of suicide decedents and thus permits the comparison of law enforcement officer suicides with other suicides.
Using the definition of a law enforcement officer adopted by this Task Force, there were fifty- five suicides among this population between 2003 and 2007. Of these, 18 or nearly one third involved law enforcement officers who were retired or on disability, and 16, or nearly thirty percent, were current or retired corrections officers. Three of the fifty-five suicides were part of
“murder-suicide” incidents. All but two suicides were committed by males. There was no time trend, so it does not appear that law enforcement suicides increased or decreased during this five- year period.
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UCR law enforcement employment data are divided into several categories, allowing the compar- ison of corrections officers with other law enforcement officers. Because population estimates for retired officers and officers on disability are not available, suicide rates can only be calculated for current law enforcement officers.
As Table 1 shows, the ratio of suicide rates among all active law enforcement officers as com- pared to all males aged 25 to 64 years is 1.3, meaning rates among law enforcement officers are thirty percent greater than similarly aged males. The ratio is 2.5 for active corrections officers and 1.1 among active non-corrections law enforcement officers.
Summary
1. The suicide rate among law enforcement officers is somewhat higher than that for similarly aged males in New Jersey.
2. There is no evidence that the suicide rate among law enforcement officers is increasing.
3. Corrections officers appear to have a higher suicide rate than other law enforcement officers.
Table 1. Suicide Rates of Law Enforcement Officers versus Males 25-64 years, New Jersey, 2003-2007
Crude rates Annual Suicides* Population*** Crude Rate (per 100,000) Ratio LE:Male
Current LE 7.4 40,000 18.5 1.3
Corrections only 2.4 6,900 34.8 2.5
Police only 5 33,200 15.1 1.1
New Jersey**
Total population 536 8,700,000 6.2 Males 25-64 years 322 2,300,770 14.0
*Average 2003-2007; excludes retired officers and officers on disability.
***Law enforcement population data from 2006 UCR
II. Risk Factors for Suicide
Among Law Enforcement Officers Compared to the Overall Population
In the overall population, the most common risk factor for suicide is a mental illness, particularly depression or bipolar disorder. Another important risk factor is access to lethal means, chiefly firearms. Relationship problems, mainly with intimate partners, are also significant, as are acute crises such as job, legal, or financial problems. Particularly among the elderly population, physi- cal health problems, or the illness or death of a spouse, can trigger suicidal behavior. Substance abuse is another risk factor. As compared with males, females are more likely to have longstand- ing mental health problems, and are less likely to commit suicide in response to an acute event such as an incarceration or a break-up in a relationship.
To address the elevated suicide rates among law enforcement officers, the Task Force sought to determine what risk factors may be particularly important for this population. Experts cite three common issues in law enforcement officer suicide. The first is greater access to a lethal means, because law enforcement officers in general possess firearms on and off duty. In comparison, only eleven percent of households in New Jersey report gun ownership. Second, stress stem- ming from upsetting or critical incidents present a unique occupational hazard for law enforce- ment officers. Finally, factors related to shift work and the consequences of law enforcement officer schedules for family relationships are also significant.
Data from the New Jersey Violent Death Reporting System were used to compare the circum- stances of law enforcement officer suicides with suicides of similarly aged males in New Jersey.
One striking and not unexpected difference is in the use of firearms. More than eighty percent of suicides among law enforcement officers were committed with firearms, compared to approximate- ly one third of suicides among similarly aged males in New Jersey. Additionally, law enforcement officer suicides were significantly less likely than others to be accompanied by documented mental health illnesses, prior suicidal behavior, or previous disclosure of an intent to commit suicide.
Law enforcement officer suicides were more likely than others to have circumstances related to a physical health problem, and to have had a problem with an intimate partner. But these findings are consistent with a general pattern of differences between firearm and non-firearm suicides.
When law enforcement firearm suicides are compared with firearm suicides among similarly aged
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that the circumstances in law enforcement suicides are broadly similar to those in other firearm suicides, in that they are more likely to take place as a result of short-term acute situations rather than long-standing mental health issues. These findings are consistent with the fact that access to lethal means is a risk factor for suicide among law enforcement officers.
Summary:
1. Access to lethal means and occupational stress are often cited as particular risk factors for suicide among law enforcement officers.
2. Law enforcement officer suicides in New Jersey are far more likely to be com- mitted with a firearm than suicides among similarly aged males, and share circumstantial characteristics with other firearm suicides.
Table 2. Reported Circumstances of Law Enforcement and Other Suicides Males, New Jersey, 2003-2007
Percent with circumstance reported
All suicides Gun suicides
Total Law Enforcement p Total Law Enforcement p
Crisis in last two weeks 24.9 32.6 27.8 38.5
Depressed mood 35.8 28.3 42.4 25.6 0.04
Death of family or friend 5.7 10.9 7.2 10.3
Financial problem 9.2 13 8.2 10.3
Physical health problem 21.8 34.8 0.03 31.2 38.5
History of mental health treatment 32.1 13 0.01 21.4 10.3 0.09
Intimate partner problem 25.2 39.1 0.03 27.9 35.9
Job problem 11.5 8.7 10.5 7.9
Legal problem 3.4 2.2 2.8 2.6
Mental health problem 37.6 19.6 0.01 26.1 18
Perpetrator of intimate partner violence 5.2 10.9 0.09 9.7 12.8
Left a suicide note 32.1 34.88 33.3 30.1
Substance abuse 16.1 6.5 0.07 10.5 5.1
History of attempts 16.5 6.5 0.07 7.7 5.1
Disclosed intent 20.1 8.7 0.06 24.1 5.1 0.009
Current mental health treatment 26.8 13 0.04 18.2 10.3
Alcohol problem 16.87 6.5 0.06 14.6 5.1
Source: New Jersey Violent Death Reporting System, New Jersey Department of Health and Senior Services Note: p-value shown when less than .10; indicates significant difference at 90% or greater.
III. Existing Resources and Barriers to Seeking Treatment
Resources for law enforcement officers who are in need of counseling include employee assis- tance programs, private practitioners, peer to peer counseling, and crisis intervention services.
Law enforcement officers in general have health insurance benefits allowing them access to men- tal health treatment. Appendix C provides contact information to access the services described in this section.
A. Employee Assistance Programs
Employee Assistance Programs (EAPs) are available to most, but not all, law enforcement officers in New Jersey. These services may be provided by a municipality, a county or the state. The func- tions of EAPs vary considerably, with some operating primarily as sources of referrals to private practitioners, while others provide short-term counseling on their own. Supervisors also refer of- ficers to their EAPs when an officer is having performance problems such as absenteeism.
B. Cop 2 Cop
New Jersey has a nationally recognized statewide confidential peer counseling program called Cop 2 Cop, legislatively established in 1998 and operating under the auspices of the University Behavioral Healthcare at the University of Medicine and Dentistry of New Jersey. Cop 2 Cop is a crisis intervention hotline service operating 24 hours a day, seven days a week. It is staffed by volunteer retired members of federal, state, and local law enforcement departments, and mental health professionals who have received law enforcement specific training. Fielding over 23,000 calls for service since 2000, the Cop 2 Cop peer counselors are trained to listen to distressed of- ficers and make appropriate referrals to mental health providers or other services.
Cop 2 Cop provides clinical assessment for officers and their families, maintains a referral network of clinical providers and offers Cop 2 Cop teams for statewide critical incident stress management services with expertise in suicide response. In addition, Cop 2 Cop deploys and provides mutual aid to all New Jersey critical incident stress management teams throughout the state. Cop 2 Cop provides peer counseling training and a variety of stress management training
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The “Blue Heart Law Enforcement Assistance Program” was enacted in 2007 and expanded Cop 2 Cop to ensure that officers wounded or involved in traumatic incidents received counsel- ing, care and support. It gives Cop 2 Cop the authority to refer wounded participants to group therapy, peer counseling and/or debriefing. Cop 2 Cop runs the New Jersey Wounded Officers Support Group Program and the group meets monthly.
C. Critical Incident Stress Management (CISM) Services
In the course of their jobs, law enforcement officers may encounter traumatic incidents that may result in varying degrees of emotional distress that might ultimately undermine an officer’s psychological well-being and put him/her at risk for suicidal behavior.2 Critical Incident Stress Management (CISM) is a comprehensive system specifically designed to prevent and mitigate ad- verse psychological reactions to a traumatic event. The approach includes assessment, strategic planning, preparation, pre-incident education, demobilizations, crisis management debriefings, individual, family, small group, organizational and pastoral interventions.
A defusing, which should typically occur within 24 hours after the incident, is an informal pro- cedure to provide information to responders. Debriefing is a structured group discussion and occurs several days after the incident. Discussion centers on the incident and officers’ reactions, but also includes a psychological education component that teaches officers positive ways to deal with stress. Providing mental health and peer counseling can be a critical stress reducer after a critical incident. New Jersey has two CISM systems that provide similar services at no cost to all first responders including law enforcement, emergency medical services and fire fighters.
New Jersey Critical Incident Stress Management Team (NJCISM) is a statewide system that deliv- ers peer support to any member of emergency services. Headed by a Chairman, its 225 mem- bers that include: 134 law enforcement, 21 emergency medical services, 4 firefighters, 3 dispatch- ers, 9 ER nurses, 9 law enforcement chaplains, 6 family members/survivors, 3 law enforcement spouses, and 22 mental health personnel. The deployed team consists of a peer counselor and a mental health provider when the situation dictates.
2The New Jersey State Police S.O.P. C37 defines “critical incident” as any event that can cause an enlisted or civilian employee to experience an unusually strong psychological and/or emotional reaction, including use of deadly force by or against an enlisted employee, accidental discharge of a weapon, and any additional unusual circumstance.
New Jersey Crisis Intervention Response Network (CIRN) is another statewide system that ad- heres to the ‘Mitchell Model’ in delivering a multi-component crisis intervention program for all first responders. Headed by a statewide clinical director, CIRN has 87 members, 11 of whom are mental health professionals. This team is deployed by a call from a first responder, supervisor, or department who contacts the CIRN 24/7 hotline number. The deployed team consists of a peer and mental health professional.
In addition to these statewide networks, the New Jersey State Police, Cop 2 Cop and several oth- er organizations maintain critical incident stress management teams as additional resources. The Critical Incident Stress Guidebook for New Jersey provides resource and contact information for state, county and local providers of critical incident stress management services and resources related to traumatic loss and disaster response.
D. Psychological First Aid
Psychological first aid is an evidence-based approach and intervention to assist survivors and responders in the immediate aftermath of a traumatic event. The approach is based on the concept of human resiliency, enhancing short and long term adaptability, coping and self-efficacy skills. Psychological First Aid for First Responders and First Receivers training was developed for NJLearn, the New Jersey Homeland Security Emergency Responder (online) Training Center.
This free online program will help First Responders and Receivers of all types, understand the emotional impact of such events, and introduce strategies and skills for managing the emotional consequences of disasters and terrorism. The program will soon be posted on the New Jersey Office of Homeland Security and Preparedness website.
E. Barriers to Seeking Treatment
Despite the existence of resources, Task Force members and presenters frequently noted that, for a variety of reasons, many at-risk officers do not seek help. The primary barriers are a law enforcement culture that emphasizes strength and control, perceptions and distrust of mental health providers, the stigma associated with seeking help, general concerns about loss of privacy that may adversely affect their careers, and embarrassment or shame. Some officers may not feel comfortable with mental health providers who do not have specific experience with law enforce- ment populations. Officers often worry that seeking help may result in the loss of their firearm, job and health benefits. Additionally, peer to peer counselors who are current members of law en- forcement agencies may not be as effective as they could be due to concerns about confidentiality.
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F. Survey of Law Enforcement Supervisors
To learn more about officers’ use of resources, and gather suggestions for improvements, an online survey was administered to law enforcement supervisors, including police chiefs, supervisors of sheriffs, state and county corrections supervisors, and parole supervisors. The survey asked about:
• the types of services used when referring officers for assistance with psychological and substance abuse related problems,
• the types of services supervisors thought their officers used if they sought assistance on their own,
• whether their officers received training about coping with stress, and
• whether their officers received training about how to interact with mentally ill civilians.
Respondents were also asked their opinion about how to improve the effectiveness of their EAPs, and ways to improve the mental health and well-being of officers. Additional details about the survey are provided in Appendix D.
1. Services Used
Overall, survey results suggested that supervisors tend to rely on their EAPs as their primary referral for officers under their command. The second most frequently used service was Cop 2 Cop. Results varied by size of department. For example, among smaller departments (fewer than 20 officers), only twenty-five percent of supervisors reported that an EAP was their first choice in making a referral. More than thirty-five percent of these supervisors reported that they
“rarely or never” made such a referral to services. In departments with more than one hundred officers, more than eighty percent of supervisors listed the EAP as their most likely referral, and none reported that they rarely or never made such a referral. When officers sought help on their own, supervisors thought they were most likely to seek a private practitioner, followed by Cop 2 Cop. This did not vary by size, as approximately half of all supervisors selected private practitio- ners as the most likely service used by officers seeking help on their own.
As noted above, a common suggestion among the responders about how to improve services to officers was to address the stigma among law enforcement officers about seeking assistance.
2. Availability of Training
Approximately half of all supervisors interviewed reported having stress or psychological well- being training available to officers under their command. The percent with such training was highest among sheriffs and county corrections, and lowest among parole supervisors. This per- cent varied moderately by size, with about forty-eight percent of the smallest agencies, and fifty- five percent of the largest agencies reported having such training. Three quarters of respondents reported that training related to working with the mentally ill was available to their officers. This percent was highest among county corrections supervisors (88.9%) and lowest among parole supervisors (38.0%). There was no consistent variation by agency size.
The most common suggestion on how to improve services for officers in the areas of stress reduction, mental health and substance abuse services was a call for additional training. These comments were equally likely to be made across agency types, and by size of agency.
3. Employee Assistance Programs
The most common response to how to improve EAPs was an expression of a positive view of these programs; with thirty percent of responders providing this response. This view was most common among sheriff and parole supervisors, and least common among state and county cor- rections. A concern about lack of confidentiality or a stigma associated with seeking assistance from EAPs was next often cited, with approximately twenty five percent providing this response.
More often than not, this was a perception ascribed to officers and apparently not shared by the survey respondent. This view was most common in state and county corrections, and least com- mon among parole supervisors.
Summary
1. The Cop 2 Cop program is an important asset for law enforcement officers in crisis, and is used by many officers. Additional services include EAPs, peer to peer counseling within the NJSP, and crisis intervention units who provide counseling in the event of critical incidents.
2. The survey results suggest a fairly high but uneven level of comfort with EAPs.
3. Supervisors expressed a desire for increased training in the areas of suicide prevention and mental health awareness, and ways to combat the stigma as- sociated with seeking help.
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IV. Recommendations
While researchers and advocates may disagree on law enforcement officer suicide rates, and the relative importance of different risk factors, there is broad consensus on the most constructive avenues for preventing law enforcement officer suicide: 1) increase suicide awareness training, 2) improve access to resources, and 3) identify best practices to emulate. The Task Force recom- mendations focus on these three areas.
A. Increase Training
Suicide prevention experts widely recommend training in suicide awareness and prevention for officers and supervisors, and survey results suggest a strong demand for this training among law enforcement supervisors. Yet there are relatively few examples of suicide prevention train- ing programs in law enforcement agencies. The International Association of Chiefs of Police recently compiled resources and best practices in this area and those materials were considered in developing these recommendations. According to the National Police Suicide Foundation, fewer than two percent of law enforcement agencies have suicide prevention programs. Those that do provide this training include New York City, Los Angeles, the California Highway Patrol, Chica- go, Miami, and the Washington State Patrol. There is evidence that awareness training can have a positive effect. The Air Force Academy program was found to reduce suicide among its officers.
The Task Force recommends the following related to training:
1. Suicide prevention awareness training
should be provided to all recruits in basic training.
The Task Force recommends that the Attorney General issue a directive requiring that a suicide prevention component be included in the Police Training Commission’s Basic Training cur- riculum. As part of this, the Office of the Attorney General and the Department of Human Services will produce a training video that will be shown during Basic Training. The video will address officers, peers, and supervisors, and will thus serve multiple training purposes. The De- partment of Corrections will produce a training video with corrections-specific scenarios, with a consistent core message to the video produced for local and municipal law enforcement officers.
The training videos will be placed on the websites of the Office of the Attorney General and other law enforcement agencies.
2. Suicide prevention training should be provided to active law enforcement officers and supervisors.
The Task Force recommends that the Attorney General send a letter to all law enforcement supervisors strongly recommending that all officers and supervisors receive suicide prevention training and information on a regular basis, including but not limited to viewing the suicide pre- vention video within six months of its release, and every three years thereafter.
B. Improve Access
Suicide awareness training provides officers and supervisors with information about risk factors for suicide and warning signs of suicidality, therefore, it is imperative that resources be available for officers in need of counseling services. While a number of excellent resources are available in New Jersey, including EAPs, Cop 2 Cop, and health insurance benefits, a number of steps can be taken to improve access to services for officers both by providing them more information about available resources, and by taking specific steps to increase the effectiveness of existing resources.
Peer to peer counselors are an important resource to address some officers’ reluctance to access services from mental health professionals. But concerns about confidentiality may inhibit some officers from using peer counselors. The retired federal, state, and local officers who staff the phone lines at Cop 2 Cop have confidential status because of their training and because they are no longer active officers. Peer counselors who are also active law enforcement officers under New Jersey law do not have confidential status, and may be required to testify if there is an inves- tigation of an incident. This may have a chilling effect on officers, and reduce the effectiveness of peer counseling for that reason. States including Colorado, Washington, Oregon and Arizona have peer confidentiality legislation outlining criteria under which confidentiality is granted.
The Task Force makes the following recommendations about improving access to services:
1. Consider legislation affording confidentiality to peer counselors in narrow circumstances, provided that they are clearly serving as peer counselors.
The Task Force recommends consideration of legislation affording confidentiality to first re- sponder peer counselors when they are serving as part of an official peer counseling program.
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The Task Force recommends that, at a minimum, peers be required to take three core courses based on the International Critical Incident Stress Foundation (ICISF) guidelines including train- ing on group crisis intervention, individual crisis intervention and peer support, and advanced group crisis intervention, as well as ongoing training. This limited privilege would be unavailable to witnesses to an event leading to the need for a peer counselor or to anyone reporting harm to themselves or others, or to the commission of illegal acts.
Peer counseling services would be voluntary among departments and those choosing to become peer counselors would be required to complete the minimum initial and ongoing training requirements.
2. Provide contact information for resources able to supply callers with information on mental health providers in the locality of their choice.
More readily available sources of information on mental health providers in the State will improve law enforcement officers and their families’ access to these services. The Task Force recommends that the State make available information on mental health providers. Examples of such contacts include Cop 2 Cop, New Jersey Mental Health Cares (Mental Health Associa- tion of NJ warmline), and 211. The information should be made available through State web- sites, mass emails, and information disseminated to all law enforcement agencies. The Attorney General and the Commissioner of Human Services websites should be used, among others, to disseminate this information.
3. Move Cop 2 Cop to the Department of Human Services
to increase the effectiveness and visibility of the services it provides.
To best align the mission of Cop 2 Cop services with a contracting state agency, the Task Force recommends that the legislature modify proposed legislation A2803/S1979 transitioning the contract for the toll-free information “Law Enforcement Officer Crisis Intervention Services”
telephone hotline from the Department of Health and Senior Services to the Department of Human Services. This recommendation requires that the legislation provide accompanying staff resource or salary coverage for contract oversight.
4. Improve effectiveness of EAPs so that they are better able to meet the needs of law enforcement officers.
While law enforcement officers surveyed by this Task Force most often had praise for the ser- vices provided by county, municipal and state EAPs, the next most frequent feedback regarding EAPs was that law enforcement officers are reluctant to use them. To address this issue, the Task Force recommends that the Attorney General and the Commissioner of the Department of Human Services reach out to EAP Directors and encourage them to advertise themselves to the law enforcement communities they serve. The Attorney General, the Commissioner of Human Services, and Cop 2 Cop will offer EAP Directors copies of the training and anti-stigma materi- als and other materials appropriate for law enforcement personnel.
5. Increase awareness of existing resources.
The Task Force Recommends that in the letter from the Attorney General and the Commission- er of Human Services, law enforcement supervisors be reminded to use the existing resources described above and to publicize their availability to officers under their command.
6. Create an anti-stigma poster campaign for law enforcement.
The Task Force recommends that the Department of Human Services, together with the Of- fice of the Attorney General and the Governor’s Task Force on Mental Health Stigma, design an anti-stigma poster campaign. Posters will be made available by DHS for all law enforcement agencies to post in locker rooms and other common areas. The Police Benevolent Association, the Fraternal Order of Police, and the State Trooper Fraternal Association will assist with initia- tives to reduce stigma among their membership.
7. Target messaging to retired law enforcement officers and officers on disability.
The Task Force recommends that the Department of Personnel periodically provide informa- tion in the retirement and disability checks of retired law enforcement officers and officers on disability, informing them of the availability of resources such as Cop 2 Cop if they are feeling depressed or in need of mental health services. The Task Force also recommends that informa- tion materials regarding suicide prevention resources be included in the initial retirement pack- ages sent to law enforcement officers.
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9. Reconvene the Task Force.
The Task Force recommends that the Governor reconvene the Task Force in one year’s time, or earlier if needed, to review the progress of the recommendations set forth in this report.
C. Best Practices
The Task Force recommends that law enforcement agencies consider adopting some or all of the following examples of “best practices” that address the barriers to seeking treatment.
1. Comprehensive Law Enforcement EAP.
The New Jersey State Police, Office of Employee and Organizational Development (OEOD), provides comprehensive, confidential services to employees and members of their immedi- ate families who are experiencing organizational, behavioral, or personal difficulties, which can adversely affect their ability to function on the job effectively, efficiently, and safely. Since 1981, the OEOD has provided services to the state troopers and their families, and those services have been expanded to five other areas: Management & Organizational Services; Critical Incident Stress Management; Chaplain Services; Peer Advocate Services Unit; and Wellness.
The Peer Advocate Services Unit provides confidential assistance and services to enlisted mem- bers and their families. This unit educates members on services and resources available during a personal or professional crisis. Providing preventative education minimizes risk management for the member and the Division of State Police. These services may be initiated voluntarily by the requesting member, a co-worker or supervisor referral, or in conjunction with the medical services unit.
The Task Force recommends that law enforcement agencies consider the OEOD as a model employee assistance program that provides services tailored to law enforcement officers’ mental health needs. The New Jersey State Police Standard Operating Procedure C37, “Office of Em- ployee and Organizational Development” is provided as a reference in Appendix E.
2. Cop 2 Cop.
The Cop 2 Cop statewide program is the only Certified Police Helpline in the country accredited by the American Association of Suicidology. The Task Force recommends that law enforcement supervisors encourage their officers to avail themselves of this resource and that they contact Cop 2 Cop if they have specific training or outreach needs.
3. Policies mandating counseling after traumatic events.
The Task Force Recommends that law enforcement agencies consider implementing policies mandating counseling after traumatic incidents. The Collingswood Police Department in New Jersey currently mandates counseling for all officers involved in critical incidents, a policy de- signed in part to reduce the stigma associated with seeking help. The New Jersey State Police has a similar policy. Such referrals ensure officers have an opportunity to receive assistance and help to eliminate the stigma associated with seeking help. The Collingswood Police Department’s General Order mandating this procedure is provided as a reference in Appendix E.
4. Non-Disciplinary Firearm Removal.
Concerns about the career consequences of the involuntary removal of an officer’s depart- ment issued firearm may deter distressed officers from seeking help, which only compounds the risk. Some jurisdictions have designed “non-disciplinary” firearm removal policies in attempt to reduce this barrier to seeking help.
The New York City Police Department in particular, has developed such a policy through its Early Intervention Unit and Psychological Services Unit that allows an officer to temporarily relinquish his or her firearms in a confidential and non-disciplinary manner when an officer is in need of counseling. The Task Force recommends that law enforcement agencies consider the appropriateness of these or similar policies for their departments. The New York Police Depart- ment Operating Procedure No: 205-47, “Temporary Removal of Firearms in Non-Disciplinary Cases” is provided as a reference in Appendix E.
5. Align Department Policies and Procedures with CALEA and NJACP Standards.
The Commission on the Accreditation for Law Enforcement Agencies, Inc. (CALEA) and the New Jersey Association of Chiefs of Police (NJACP), have developed standards to improve the
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V. Conclusion
The Task Force report identifies the key risk factors for law enforcement suicide and recom- mends ways to address the barriers to officers seeking treatment. The recommendations reflect the Task Force findings that the most constructive avenues for preventing law enforcement suicides are increasing suicide awareness training, improving access to resources and identifying best practices that law enforcement agencies can emulate.
Appendix A
Governor’s Task Force on Police Suicide Members
Co– Chairs
Jennifer Velez, Commissioner - Department of Human Services Anne Milgram, Attorney General - Department of Law and Public Safety
Members
Edward Brannigan, President - New Jersey Fraternal Order of Police Cherie Castellano - Director, Cop 2 Cop
Robert N. Davison, Executive Director, Mental Health Association of Essex County Thomas Garrity - NJ State Association of Chiefs of Police
Dennis J. Hallion, President - NJ State Police Non-Commissioned Officers Association David Jones, President - State Troopers Fraternal Association
Donna E. Lamonaco – New Jersey State Police Survivors of the Triangle – C.O.P.S. Chapter Madeline Neumann - Garden State Chapter of New Jersey Concerns of Police Survivors Orlando Ramos, PhD - New Jersey State Police
Robert Rice, Chaplain - NJ CISM Team, Inc.
Kenneth Burkert, Designee to Anthony F. Wiener - State President. New Jersey Policemen’s Benevolent Association Katherine Hempstead, Director Center for Health Statistics - Department of Health and Senior Services
Kevin Martone, Assistant Commissioner, Division of Mental Health Services - Department of Human Services Adrienne Fessler-Belli, Division of Mental Health Services - Department of Human Services
Staff
Beth Connolly, Director, Research & Evaluation - Department of Human Services
Janine Matton, Deputy Attorney General, Special Assistant to the Attorney General - Department of Law and Public Safety
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Appendix B
Governor’s Task Force on Police Suicide Presentations to the Task Force
Presenter Organization Topic
James Andruszkewicz
Michael Peruggia New York Police Department NYPD Early Intervention Unit
Cherie Castellano Cop 2 Cop Cop 2 Cop Program
John’s Hopkins Bloomberg Best Practices in Police Suicide Prevention George Everly, Ph.D. School of Public Health
New Jersey State Association Camden County Police Crisis Intervention Training Thomas Garrity, Jr. of Chiefs of Police
William Genet John Madden
Eugene Moynihan POPPA, New York City Police Organization Providing Peer Assistance Raymond F. Hanbury, Ph.D, ABPP New Jersey-CIRN NJ Crisis Intervention Response Network
New Jersey Department of Health
Katherine Hempstead, Ph.D. & Senior Services NJ Violent Death Reporting System Data New Jersey State Police Survivors
Donna E. Lamonaco of the Triangle – C.O.P.S. Chapter Survivor Programs Garden State Chapter of New
Madeline Neumann Jersey Concerns of Police Survivors Survivor Programs
Gregory March New Jersey State Police Peer Advocate Services Unit
Cpl. Govan Martin Pennsylvania State Police PSP Member Assistance Program
James Nestor New Jersey Department
Jackie Pestano of Law and Public Safety State Police Employee Assistance Program
Robert Rice New Jersey CISM NJ Critical Incident Stress Management Team
Michele Shinnick Survivor Survivor Issues
Eugene Stefanelli, Ph.D. Private Practitioner Peer Assistance and Response Team
Kenneth Burkert New Jersey PBA
John Violanti, Ph.D. University of Buffalo Law Enforcement Suicide Research
Appendix C
Resource Contact Information
Collingswood Police Department Chief Thomas J. Garrity, Jr.
[email protected] Cop 2 Cop
www.cop2coponline.org
1-866-Cop2Cop (1-866-267-2267)
Critical Incident Stress Guidebook for New Jersey
Copies available by contacting New Jersey Disaster Critical Incident Stress Response:
www.njdcisr.org
International Association of Chiefs of Police (IACP) – Preventing Law Enforcement Officer Suicide:
A Compilation of Resources and Best Practices www.theiacp.org
New Jersey Crisis Intervention Response Network 1-866-657-2473
New Jersey Crisis Intervention Stress Management Team www.njcismteam.org
New Jersey Department of Human Services www.state.nj.us/humanservices
New Jersey Police Benevolent Association (PBA) www.njspba.com
New Jersey Fraternal Order of Police (FOP) www.njfop.org
New Jersey State Police Office of Employee and Organizational Development New Jersey State Police Peer Assistance Unit
www.njsp.org/oeod
New Jersey State Trooper Fraternal Association (STFA) www.stfa.org
Pennsylvania State Police, Member Assistance Program (MAP) www.pspcares.state.pa.us/pspcares
January 30, 2009
Appendix D
Survey of Law Enforcement Supervisors December 2008
The survey was administered in mid-December via email. The response rate was 33% for police chiefs, 67%
for sheriffs, 100% for state corrections, 50% for county corrections, and 81% for parole. There were 197 respondents overall.
Open-ended questions
Respondents were asked to comment on the strength and weaknesses of their employee assistance program, and also to provide any other information they thought would be useful regarding services available to law enforcement officers in the area of stress or behavioral health/substance abuse. Of the 197 total respondents, 118 responded to the first open-ended question (60%), and 60 responded to the second (30%). Their respons- es were grouped into categories that reflected the main point of their comment. Below we provide responses to the open ended questions.
Comments about the E.A.P.
Praise
With regard to suggestions about improving the employee assistance program, the most common type of com- ment was one which expressed a positive view of the program. About thirty percent of respondents made such a comment. This view was most common among sheriff and parole supervisors, and least common among state and county corrections. These types of statements included ones such as the following:
“Fortunately, we have had very little reason to use our EAP over the years. The times we have used it the response from the employees has been very positive.”
(Police Department, 20-49 officers).
“This is very private and the officers who have used it have been comfortable with it.”
(Police Department, 50-99 officers).
“Our County has a strong EAP program and doesn’t hesitate to make our employees aware of its use.”
(County Corrections, 100+ officers).
Stigma/Confidentiality
The second most common type of comment made about the employee assistance program referred to a con- cern about lack of confidentiality or a stigma associated with seeking help. Approximately twenty-five percent of respondents made a comment that fell into this category. More often than not, this was a perception ascribed to officers and apparently not shared by the survey respondent. This view was most common in state and county corrections, and least common among parole supervisors. Representative comments are as follows:
“Officer perception of the program is the most significant drawback. There are issues with mistrusting anything the State attempts to do to assist.”
(State corrections, 100+ officers)
“It is my belief that the county EAP is adequate. Unfortunately it is my opinion that staff may not utilize it due to an assumed stigma.”
(County corrections, 100+ officers)
“Officers are afraid of the municipal EAP due to privacy issues and the big brother is watching mentality.”
(Police department, 20-49 officers)
Access
The next major category of comments concerned access to employee assistance programs. Approximately eighteen percent of respondents made a comment about access to their E.A.P. Some noted that they didn’t have a program at all, while others mentioned shortages of staff and limited hours. Sheriffs and state corrections supervisors were most likely to make comments about access. County corrections and parole supervisors did not mention access at all. Approximately fifteen percent of police chiefs mentioned access concerns.
“Most Twp do not have a working program. If they do they don’t share it with the police department. If you ask for employee assistance programs, the answer is that it’s not in the budget.”
(Police department, 20-49 officers)
“Address staffing shortages and availability to persons on shift work.”
(Police department, 50-99 officers)
“It is our County’s Policy that the Employee Assistance Program is not available to law enforcement officers working for the county. The County states that law enforcement officers must use the COP to COP Program…”
(Sheriff, 50-99 officers)
January 30, 2009
Other general comments
The second open-ended question called for general suggestions about how to improve services for officers in the areas of stress reduction, mental health and substance abuse services. The most frequent comment, made by approximately half of respondents (31), was a call for some type of additional training. These comments were equally likely to be made across agency types, and by size of agency. Examples of representative comments are listed below:
“Training!!! We need more training for the well being of the Officers and we need training in how to deal with mental illness problems in general. We are seeing a big increase in people with mental illness.”
(Police department, 50-99 officers)
“Mandatory inservice training under directive/guideline from AG.”
(Police department, 50-99 officers)
“There is no clear mandate for these illnesses to be reported to the employer. There is not a defined policy on weapons use/privileges when an employee is in treatment and/or on medication. This is a trag- edy waiting for a time to happen.”
(State corrections, 100+ officers)
“I would like to see a recommendation to the Attorney General that mandates annual training on stress and other health related issues.”
(Police department, 25-49 officers)
Stigma
The other major category of responses concerned the issue of stigma. Ten respondents, or approximately sixteen percent, made a comment about stigma. There was no particular pattern with regard to type or size of agency.
Representative comments are as follows:
“There needs to be more acceptance that there is such a thing as police stress. Too often people think that the mostly suburban communities do not have enough danger to create stress and that small police agency officers have it made and have no stress.”
(Police department, <20 officers)
“Remember that officers feel more reluctant than other types of employees to seek help. They fear the stigma will hurt their image/career. We also need to find a way for peers to identify staff in need without repercussions.”
(Police department, 100+ officers)
“Institution of training that would remove the stigma that a person with a problem is damaged goods and useless to the job.”
(Sheriffs, 100+ officers)
“Officers have to realize that it is not showing weakness in requesting help in a stressful situation.”
(Police department, 50-99 officers)
Appendix E
Model Policies
New Jersey State Police, Standard Operating Procedure C37,
“Office of Employee and Organization Development”, April 2007.
Collingswood Police Department, General Order #96-0012, June 1996.
New York City Police Department, Patrol Guide, Personnel Matters Procedure No:205-47,
“Temporary Removal of Firearms in Non-Disciplinary Cases”, March 2004.
January 30, 2009
DEFINITION
PROCEDURE
RANKING OFFICER
DESK OFFICER, COMMAND OF SURRENDER
NOTE
that member's fitness to perform duty in non-disciplinary cases.
RANKING OFFICER- For the purposes of this procedure only, a Department surgeon, uniformed member of the service in the rank of captain or above, or other competent authority.
Whenever a Department surgeon, uniformed member of the service in the rank of captain or above, or other competent authority, determines that a member’s firearms should be temporarily removed for non-disciplinary reasons (e.g., stress as a result of family or other situations, suicidal tendencies, etc.) the following steps will be complied with:
1. Request response of Department psychologist, if warranted, through the Sick Desk Supervisor, at (718) 760-7606.
2. Direct that the member’s pistols, revolvers, IDENTIFICATION CARD (PD416-091), and shield be removed.
3. Deliver surrendered property to command where the order to surrender was given.
4. Ascertain if member possesses additional firearms, i.e. pistols, revolvers, rifles or shotguns:
a. Question member directly
b. Direct desk officer, command of surrender, to check member’s FORCE RECORD (PD406-143).
5. Notify member’s permanent command and request a check of member’s FORCE RECORD (PD406-143) to determine if all weapons listed have been surrendered.
6. Arrange to obtain other additional firearms if necessary.
The command where any of the member’s pistols or revolvers are located may be directed to retrieve the weapons and deliver them to either the member’s command or to the command in which the investigation is being conducted, if appropriate.
7. Have PROPERTY CLERK’S INVOICE (PD521-141) prepared for firearms obtained. Include on INVOICE notation “Property of uniformed member of the service - Not to be returned without approval of Commanding Officer, Medical Division.”
a. Place shield, and IDENTIFICATION CARD into a Plastic
PATROL GUIDE
PROCEDURE NUMBER: DATE EFFECTIVE: REVISION NUMBER: PAGE:
205-47 03/26/04 04-01 2 of 4
NOTE
RANKING OFFICER
NOTE
COMMANDING OFFICER, MEDICAL DIVISION
COMMANDING OFFICER, MEDICAL DIVISION
Do not prepare REMOVAL/RESTORATION OF FIREARMS REPORT (PD524-152).
8. Make notification to Early Intervention Unit. If closed, have notification made at beginning of next business day.
9. Prepare detailed confidential report addressed to Commanding Officer, Medical Division, and forward direct.
10. Forward copies of the report to:
a. Director, Employee Management Division (Attention: Early Intervention Unit) in all cases.
b. The member’s commanding officer in all cases.
c. Chief of Internal Affairs Bureau (IAB) only if the incident generates an IAB log number. (Notify IAB Command Center of results of investigation).
d. Investigative unit concerned (i.e. borough/bureau investigations unit) only if further investigation of the incident is necessary.
If the incident involves corruption/serious misconduct, comply with P.G. 206-08,
“Suspension From Duty-Uniformed Member of the Service,” or 206-10, “Modified Assignment,” 206-17, “Removal and Restoration of Firearms” and 207-21, “Allegations of Corruption and Serious Misconduct Against Members of the Service.”
11. Direct member concerned to:
a. Report to his/her permanent command at 0900 hours for each tour of duty that falls on a business day (Monday through Friday).
b. Work normally assigned tour hours whenever tour of duty falls on a weekend (Saturday or Sunday) or holiday.
c. Be assigned to non-enforcement duties.
d. Follow steps 11a. -11c. as indicated above until an evaluation determination and further reporting instructions from the Commanding Officer, Medical Division are received.
12. Review confidential report prepared by ranking officer.
13. Determine with supervisory psychologist if member concerned should be evaluated by the Psychological Evaluation Unit.
14. Notify member concerned to appear at Psychological Evaluation Unit if determination is made that member requires evaluation.
WHEN IT IS DETERMINED THAT THERE IS A MEDICAL OR PSYCHOLOGICAL REASON FOR THE MEMBER’S FIREARMS TO BE OFFICIALLY REMOVED
15. Have member’s firearms officially removed when deemed necessary
